As has been stated before, grants for public health works and peat development schemes are determined by the need that exists for such works in particular areas, and not necessarily by reference to the relative unemployment position in such areas.
In the matter of roads (urban) schemes the net amount available for expenditure in the financial year was £259,211, of which 98.8 per cent. has been expended.
For housing site development works the sum available in the financial year was £4,709, and the whole of the amount was duly expended. Under the heading of roads (rural) schemes the amount available for expenditure was £554,996, of which 93.3 per cent. was expended. For minor employment schemes the sum available was £263,338, all expended. For peat development schemes the amount sanctioned was £7,383, and this was duly expended.
The matter of the Clonsast Labour Camp was alluded to by the Minister for Industry and Commerce when he gave a considerable amount of particulars which I do not intend to repeat now unless the House desires it. This scheme of the Clonsast bog is financed from this Vote to the extent that any loss on it is charged against this Vote. Therefore the particulars are clearly for examination here; if any Deputy desires I shall read them. As the House is aware, there has been considerable pressure from all sorts of quarters that something should be done to enable employment to be given, and the problem which is known as the employment of those people— the younger people, many of whom had never employment—tackled. An attempt was made in Clonsast. This year the beginning of an experiment along those lines was started. For the purpose of the experiment it was decided to confine the recruitment to the recipients of unemployment assistance between the ages of 18 and 25 living in the County Borough of Dublin, people without dependents. Further it was provided that it should be limited to persons who had been unemployed for 12 months, or who had no previous work experience. This work was confined really to useful work upon which the amount provided can be used to give them employment. We were fortunate in the fact that in the turf development work in Clonsast there was an opening for the employment of entirely unskilled labour in the open air, under conditions which seemed to be very specially suitable for the purpose of benefiting these men. It was for that reason that that place was chosen. The Board already had a small camp in operation in Clonsast which was capable of accommodating 50 workers, and the original building has now been extended to accommodate an additional 100 workers. There were comfortable quarters for the workers. There was a separate sleeping cubicle for each worker. The buildings were suitably heated. There was a substantial diet of wholesome food provided, and provision made for outdoor games and indoor recreation for the men. Free medical attention was provided, as were facilities for religious services.
The work consisted principally of the various operations of turf winning on the bog and digging drains. The workers were paid on the terms already operating in Clonsast for each class of work. It is understood that the local workers earned an average of 36/- for a 48 hours' week. The amount earned by the city recruits will depend upon their output of work, but in order to give them an opportunity of becoming accustomed to this class of work, for a limited period each recruit is guaranteed a minimum sum leaving him 4/- a week for personal expenses after providing for food, etc. The food and accommodation at the camp will cost the recruit 17/6 a week. It is thought that the recruits may in a short time be able to exceed the minimum rate of earning, but this is one of the matters which the experiment is designed to test. Another matter to be tested is whether their experience in the camp will give the workers a better prospect of subsequent employment in their ordinary occupation. After 12 months, the first group of city workers were to be replaced by another batch of similar recruits.
The expenditure on the buildings and general equipment is approximately £9,000. In the event of its not being successful, and I hope and believe it will, the building will be used to the best advantage by the Turf Development Board. The whole circumstances of the case will and must receive very careful and continuous examination. It would be premature at this stage to form any strong judgment in the matter, or to make any general statement. I am satisfied that in specially putting up this scheme every possible prevision that could be taken in the matter in order to provide a scheme for the benefit of the men, was taken. The whole object of the scheme has been to benefit the men concerned, and in the process to set a basis possibly for the solution of the very large social problem which lies behind it. It is in that spirit the scheme has been initiated, and it is in that spirit it will be continued.
I now come to deal with small marine works. Of the original allocation under this head £4,354 was not absorbed. The net amount available for expenditure was £6,702, of which £3,202 or 47.8 per cent. was expended. These minor marine schemes are for the most part carried out under the supervision of the engineers of the Office of Public Works, and the slow progress of the work is due to the fact that, although the plans and specifications had in all cases been prepared and the work sanctioned in good time, shortage of the engineering staff of the Office of Public Works, and the pressure of more important work made it impossible to have a large proportion of the schemes put in hands. This difficulty has been overcome in the past year, and the position should be better in future.
For land reclamation schemes the amount available for expenditure within the financial year was £103,400, all of which was expended. The total amount available for miscellaneous schemes within the financial year was £42,745, all of which has been expended. Of the total estimated expenditure of £1,586,852 (including contributions by local authorities during the financial year 1939-40) approximately £669,260 was expended during the period 1st April to 31st October, and the balance of £917,592 during the winter months. The maximum number of workmen employed at any one time during the year was 38,270. The average number employed during the period up to October was 10,981, and from November to March, 27,960. Of these approximately 77 per cent. were workmen who would otherwise have been entitled to unemployment assistance. The average period of employment given to individual workmen varies with the class of work and the different areas, but it is estimated that from 60,000 to 70,000 individual workmen received part-time employment of three to four days per week for an average of 15 weeks in the year. The total number of applications received for minor employment schemes during the years was 4,400, and about 7,500 proposals were investigated and reported on. During the spring and summer approximately 525 small drainage schemes were carried out at a cost of £38,131.
I have on previous occasions alluded to the difficulty in keeping up the volume of proposals for employment schemes. The difficulty is to keep up the volume of suitable schemes. To be suitable for the purpose of the Employment Schemes Vote, a scheme must have a reasonably high unskilled labour content, and this eliminates many proposals which on their face appear to be very desirable works of public utility, but which are of such a nature that a disproportionately small part of their cost is paid in wages to unskilled labourers.
Another criterion of suitability is that the work proposed must not be one which the local authorities should or would undertake at once or in the immediate future out of their own funds, as the adoption of such schemes would not, in fact, yield any additional employment. Also, the location of employment schemes must generally be strictly related to the numbers of unemployed persons in each area, and as employment schemes have now been in operation over a considerable number of years, it should be evident that in many areas the best and most suitable of the works have already been exhausted.
A very special difficulty has arisen in maintaining a suitable supply of works of good public value and high labour content in the boroughs. Definitely the position is becoming extremely difficult. Dublin last year did not absorb half of the money which was available; Cork did not absorb the money which was available; and other boroughs found considerable difficulty in putting forward schemes which were desirable. I am receiving from boroughs and places of that kind schemes at the present moment the labour content of which is definitely low. This money is not voted by the Dáil for the purpose of doing works as such. It is not voted for the purpose, as far as I understand it, of making roads, or specifically for that purpose. The roads and other things which are done are done for the purpose of enabling the Dáil through those works to distribute in wages to necessitous people money which they need. We have to face the fact that the labour content, the labour value, of these schemes is year by year depreciating.
Last autumn, when the necessity for economies during the war was considered, the winter programme of employment schemes which had been prepared in advance and was then due to commence, was also reviewed to ascertain whether, in the light of the unemployment position in the rural areas at the time, and also having regard to possible modifications in the Employment Period Orders, the expenditure on employment schemes during the winter should be altered. In the event, however, no change was actually made in the amounts which had already been notified to the local authorities, but one of the results of the discussions which took place was to delay the issue of notifications of the commencement of the schemes comprised in the winter programme, and this had the effect of considerably reducing the numbers of persons engaged on employment schemes in the months of November and December, 1939, as compared with the numbers in the same months of the previous year.
The actual increase in unemployment registration in the first months of this year as compared with the same months in 1939 can best be judged by the combined figures of the live register of unemployment and the numbers engaged on employment schemes. On this basis the increase in the first week in January was just under 10,000; in the first week of February, 7,250, and of March, 9,300. There was a decrease of 21,000 in the first week of April last as compared with the same period in 1939, but this was due to the new Employment Period Order which operated from early in March this year as compared with June in 1939. That, I think, covers the story of last year as far as I know it. I understand that Deputy Morrissey is moving that the Vote be referred back for reconsideration, but I do not know the particular point which he has in mind and, if I have not dealt with it, he will take it that it is simply because I do not know. The provision for 1940-41 is £1,400,000, which is the same as the provision for 1939-40.